THE VILLAGE OF A CASE STUDY {ONTONAGON

Michigan Coastal Community Working Waterfronts A CASE STUDY

THE VILLAGE OF ONTONAGON

ACKNOWLEDGEMENTS Michigan Coastal Community FELLOWSHIP MENTORS Working Waterfronts Mark Breederland, Michigan Sea Grant Extension Emily Finnell, Office of the Great Lakes

NOAA FELLOWSHIP ADVISORY COMMITTEE This case study was compiled as part of a set of 11 working Jon Allan Richard Norton John Warbach waterfront case studies in coastal communities. For more Dave Knight Chuck Pistis Ronda Wuycheck information on the series, please see the Introduction, Carol Linteau Jennifer Read Lynelle Marolf Frank Ruswick Value and Context, Waterfront Land Use, Best Practices, and Recommendations and Next Steps sections. OFFICE OF THE GREAT LAKES AND SEA GRANT STAFF OTHER CASE STUDIES IN THIS SERIES: PREPARED BY Alpena Marquette Saugatuck Elizabeth Durfee Charlevoix Monroe Sault Ste. Marie 2011-2013 National Oceanic and Atmospheric Administration Coastal Manistee Muskegon Zone Management Fellowship with the Michigan Coastal Zone Manistique Port Huron Management Program and Michigan Sea Grant.

Cover photos: Mineralogical Society of America, National Oceanic and Atmospheric Administration, U.S. Army Corps of Engineers.

June 2013 | MICHU-13-727 TABLE OF CONTENTS Introduction...... 4 FIGURES AND TABLES Summary...... 5 Figure 1. State of Michigan and Ontonagon County and aerial image of the Village of Context ...... 7 Ontonagon with Lake Superior and the Community Profile...... 8 Ontonagon River...... 6

Community Overview...... 9 Table 1. Intent, permitted uses and special uses of zoning districts that accommodate Waterfront History...... 10 water-dependent uses and/or public access...... 13

Waterfront Summary...... 11 Figure 2. City of Ontonagon 2012 zoning districts...... 14 Zoning...... 14 Figure 3. Map of zoning adjacent to waterfront Infrastructure and Access...... 17 and frontage by zoning category...... 15 Working Waterfront SWOT Analysis ...... 18 Figure 4. Map of zoning and location of Tools, Strategies and Best Practices for water-dependent uses within a 1000-foot buffer Maintaining Working Waterfronts...... 19 of water bodies and waterfront land area by zoning category...... 16 Guiding Principles...... 20 Figure 5. Classification of parcels within References and Resources...... 21 a 1000-foot buffer of water bodies by water dependency...... 17

Table 2. Strengths, weaknesses, opportunities and threats related to maintaining Ontonagon’s working waterfront...... 18 Elizabeth Durfee INTRODUCTION Many coastal communities have areas known fish stocks and regulations, aging and inadequate This case study: as working waterfronts — waterfront lands, infrastructure, decline in waterfront industry and n Characterizes one of many working waterfronts waterfront infrastructure and waterways that are economic recession — threaten the viability of found throughout Michigan’s diverse coastal used for water-dependent uses and activities. water-dependent businesses and access to the communities. These uses may include ports, small recreational public trust waters. Left unchecked, these threats n Identifies existing waterfront amenities, waterfront boat and fishing docks and other types of places can result in the slow loss of working waterfronts history, waterfront zoning and land area occupied or businesses where people use and access the and permanent conversion of waterfront property by water-related uses. water. Coastal communities’ working waterfronts to non-water-dependent uses. n offer economic and cultural value, contribute to a Highlights examples of waterfront challenges, community’s identity and are intrinsically tied to Active waterfront planning and the sharing and threats and opportunities as well as tools and a region’s natural resources. implementation of tools, resources and strategies strategies for maintaining the working waterfront. for maintaining and protecting working waterfronts A number of factors — such as population can ensure access for water-dependent uses and change, competing land uses and development activities, as well as preserve options for future pressure, fluctuations in water levels, changes in waterfront uses.

ONTONAGON Michigan Coastal Community Working Waterfronts Case Study 4 SUMMARY

Ontonagon, Michigan was founded The harbor is an economic catalyst Land use along the waterfront in in 1838 in the Northeastern Upper for the region and loss of industry Ontonagon consists of approximately Peninsula at the mouth of the along the waterfront has resulted in 80 percent mixed use and 20 percent Ontonagon River on Lake Superior. significant job loss. Closure of the residential zoning districts. Within Ontonagon is a small village in a rural, county’s last copper mine, Smurfit- a 1000-foot buffer of Lake Superior primarily undeveloped county. The Stone Corporation Paper Plant and and the Ontonagon River, land use village’s population peaked at 2,400 in the Upper Peninsula Shipbuilding consists of approximately 59 percent the 1970s. In 2010, the community’s Company resulted in significant local mixed use, 34 percent residential and population of 1,494 was 16 percent and regional employment and vacant 8 percent industrial districts. less than the 2000 population. waterfront property. In additional to economic hardship, Proximity to the Porcupine Mountains Recent economic setbacks, however, the remoteness of the community and and the Keweenau Peninsula, have resulted in the opportunity to its distance from markets, challenges recreational opportunities and mining re-envision the village’s waterfront. associated with retrofitting uniquely history draw visitors to the village. The village rezoned the former paper configured vacant buildings and the Ontonagon has approximately 7.6 mill property with frontage on Lake lack of easy access to the marina from miles of frontage on Lake Superior Superior and the Ontonagon River downtown Ontonagon on the opposite and the Ontonagon River. Ontonagon to mixed use to attract new residents side of the river present additional River provided transportation for and businesses and reserved the hurdles to the community’s working lumber, copper, coal and supported deep water port for future industry. waterfront. the fishing industry. Ontonagon was Ontonagon adopted a hybrid zoning the busiest port on Lake Superior circa ordinance with form-based code and Best practices for maintaining access 1880. waterfront mixed use districts that to the waterfront for the public and is designed to promote connection water dependent uses include creating The Ontonagon Harbor is a federally to and support physical access to a hybrid zoning ordinance to guide authorized deep draft commercial water resources. Additionally, the revitalization of the community’s and recreational harbor. The harbor community’s waterfront plans include formerly industrial waterfront by supports several dock facilities as increasing access to the lighthouse, enabling mixed use development well as a marina and boat launch. developing a water trail on the river along the waterfront and promoting There are over 1000 feet of publicly and continue to clean up contaminated connection t the public waterfront, accessible beach along the Lake property. open space and downtown through Superior shore as well as linear parks design, while maintaining deep water with fishing access within the village. access for future industrial use.

ONTONAGON Michigan Coastal Community Working Waterfronts Case Study 5 ONTONAGON, MI

Michigan Lake Superior Ontonagon County 100 miles N Village of Ontonagon

Ontonagon River

1 mile N FIGURE 1. STATE OF MICHIGAN AND ONTONAGON COUNTY (LEFT) AND AERIAL IMAGE OF THE VILLAGE OF ONTONAGON WITH LAKE SUPERIOR AND THE ONTONAGON RIVER.

ONTONAGON Michigan Coastal Community Working Waterfronts Case Study 6 CONTEXT

Jurisdiction / Government Village

Region Upper Peninsula

County Ontonagon

Land Area 2368 acres / 3.7 square miles

Watershed/Subwatershed Lake Superior Basin / Ontonagon River

Dominant Land Use of Subwatershed Forest

Adjacent Bodies of Water Lake Superior, Ontonagon River

Type of Water Body Great Lake, River

Percent of Land Area within the CZM 17%

Population (2010) 1,494

Percent of County’s Population 22%

Percent of County’s Land Area <1%

Urban / Suburban / Rural Rural

Federally Authorized Harbors/Projects Ontonagon River

Type of Port Commercial, Recreational

Elizabeth Durfee

ONTONAGON Michigan Coastal Community Working Waterfronts Case Study 7 COMMUNITY PROFILE

POPULATION EMPLOYMENT HOUSING n The population of Ontonagon Of the city’s population over age 16: n From 2000 to 2010, the total number declined 16 percent from 2000 to n 51 percent are in the labor force of housing units in Ontonagon 2010. In 2010, the village’s population and employed and 9 percent are increased by 2 percent and the density was 404 persons/square mile. unemployed. percent occupancy of housing units n The population of Ontonagon County n 60 percent are employed in the top decreased by 9 percent. decreased by 13 percent from 2000 3 (of 13 total) industries classified n Owner occupied housing units to 2010. in the American Community Survey: decreased by 11 percent and renter n The median age in Ontonagon educational services and health occupied housing units increased by increased from 47 in 2000 to 51 care and social assistance (28%); 12 percent from 2000 to 2010. in 2010. manufacturing (16%); and retail n Residential construction in trade (15%). Ontonagon County decreased EDUCATION n 25 percent are in sales and office from 132 buildings in 1990 to n Of the village’s population age 25 occupations, 22 percent percent 30 buildings in 2000 and then to and older (75% of the village’s total production, transportation and 9 buildings in 2010. population), 45 percent have a material moving occupations, 21 high school degree or higher and percent service occupations, 18 10 percent have a bachelor’s degree percent management, business, or higher. science and arts occupations and n Of the county’s population age 25 14 percent natural resources, and older (71% of the county’s total construction and maintenance. population), 41 percent have a Ontonagon County Great Lakes Jobs high school degree or higher and Snapshot (NOAA) 11 percent have a bachelors degree n or higher. In 2009, Great Lakes related jobs accounted for 1 percent of total jobs INCOME in Ontonagon County, representing a decrease of 77 percent since 2005. n The median household income n between 2006 and 2010 in the Great Lakes related jobs provide Village of Ontonagon was $32,950, employment for 14 people, provide compared to the median household $116,000 in wages and provide income in Ontonagon County of $220,000 in goods and services. $35,269.

ONTONAGON Michigan Coastal Community Working Waterfronts Case Study 8 COMMUNITY OVERVIEW

The Village of Ontonagon is located in Ontonagon CAPACITY County at the mouth of the Ontonagon River on The Village of Ontonagon has a Village Manager form the south shore of Lake Superior. Ontonagon is of government and is governed by a 7 member council. approximately 140 west of Duluth, MN. The village is The village has a five member planning commission, accessible from three State and U.S. Highways and six member recreation commission, a six member is at the northern terminus of the Escanaba and Lake marina commission and a Joint Recreation Advisory Superior Railroad (2007 master plan). Board with the township. The village manager is a Ontonagon is the county seat of Ontonagon County voting member of both the marina commission and the and the only incorporated community in the county. recreation commission and acts as a liaison between The village is characterized by low density residential the planning commission and the village council. The neighborhoods and a small downtown core. village manager also directly supervises staff in the Lake Superior shore in Ontonagon. Elizabeth Durfee marina and recreation areas. The village lies within the 1,384 square mile Ontonagon River watershed, which is primarily forested with some wetlands, agricultural land and small urban centers. There are 21 major lakes, 26 major trout streams, nine waterfalls, four named rapids and 52 miles of shoreline within Ontonagon County.

Recreational opportunities in the region, surrounding wilderness, mining history and the community’s location near the base of the Keweenau Peninsula and just east of over 90 square mile- Porcupine Mountains State

Park draw visitors to the village. Ontonagon River. Elizabeth Durfee

The closure of the Smurfit-Stone Corporation Paper Plant and the Upper Peninsula Shipbuilding Company resulted in significant local and regional unemployment and left vacant, underutilized land along the village’s waterfront.

Ontonagon Marina. ExploringtheNorth.com

ONTONAGON Michigan Coastal Community Working Waterfronts Case Study 9 WATERFRONT HISTORY

Ontonagon was founded in 1838 and incorporated as In 1847 the U.S. Department of Commerce Lighthouse a village in 1885. The Ontonagon River provided a port Service acquired land for a lighthouse in the village. for transportation of lumber, copper and coal, supported The Ontonagon Lighthouse, one of the first five the fishing industry and played significant role in the lighthouses build on Lake Superior, was built in 1852. development of the community. The lighthouse operated until 1964 and was placed on the National Register of Historic Places in 1975. It is now In the mid-1800s, copper mining boomed with the open for tours. opening of the Cliff Mine and Minnesota Mine in Ontonagon County. A mass of copper called the The village’s population peaked at 2,400 in the 1970s. Ontonagon Boulder was discovered in the region and The Upper Peninsula Shipbuilding Company opened and River Street facing north circa 1936. michiganbackroads.com placed at the mouth of the Ontonagon River. Today, the then closed after just a few years in 1982. The county’s boulder sits at the Smithsonian Institute. last copper mine the Copper Range Company closed in 1995. The area has not fully recovered from this closure. The fishing and lumber industries also thrived in the late In 2011, Smurfit-Stone, a paper company and major 1800s and early 1900s. One company that located in employer that provided nearly 200 jobs closed after Ontonagon during this period was the Diamond Match almost 90 years of operating in the village. Company, which moved to the area to harvest white pine and built two large mills. The opening of the Copper District in the 1840s, the construction of the first Soo Lock in 1855 and the Ontonagon River Improvement Company’s use of log drives to transport logs down the Ontonagon River in 1879 led Ontonagon to become the Ontonagon Lighthouse. Elizabeth Durfee busiest port on Lake Superior. The fire of 1896 destroyed the entire village, including Diamond Match Company.

Former U.P. Shipbuilding Company on Lake Superior. Elizabeth Durfee

ONTONAGON Michigan Coastal Community Working Waterfronts Case Study 10 WATERFRONT SUMMARY

Land use along Lake Superior on the west side of Smurfit Stone Container, has shut down. Annual the village and along the east and west banks of the dredging is required and maintenance dredging is Ontonagon River is characterized by waterfront mixed contingent on the presence of commercial navigation. use zoning. Lake Superior frontage to the east of the The harbor provides the main economic catalyst for the Ontonagon River consists of residential land uses. area and the loss of industry along the waterfront has The village’s downtown is located on the east side of resulted in loss of local and regional jobs. Ontonagon the Ontonagon River. The former industrial property Harbor is a Harbor of Refuge; Failure to maintain the located between the west side of the Ontonagon River harbor may has repercussions for boater safety. and Lake Superior has been rezoned to include mixed use waterfront uses, including residential uses. The Ontonagon’s port includes several dock facilities. The Ontonagon County Economic Development community has over 1000 feet of publicly accessible Ontonagon Marina. Elizabeth Durfee Lake Superior beach front. Corporation (EDC) receives approximately 100,000 tons of coal for the White Pine Electric Power LCC. The Ontonagon River is the largest river on the south Historically, the Smurfit-Stone dock received an shore of Lake Superior. The river is 157 miles long and equivalent amount of coal and the EDC received designated as a Wild and Scenic River. Lake Superior limestone in additional to coal. The village’s marina and the Ontonagon River provide many fishing and has seven transient slips and 29 seasonal slips and boating opportunities. serves the village and surrounding townships. In addition to amenities including restrooms, pump out The Ontonagon Harbor is a federally authorized facilities and a boat launch and hoist, the marina has a deep draft commercial harbor. The project consists fish-cleaning station, park and picnic area. The strip of of approximately 3/4 miles of maintained channels land running along the river south of Ontonagon Street including over 4,800 feet of structures. Major (‘the Island’) has floating docks for fishing, seating Riverfront boardwalk on Island Shoreline Park. Elizabeth Durfee stakeholders include the U.S. Coast Guard, Lake areas and a nature walk and park. There are over Carriers’ Association and White Pine Power. In 2007, 1000 feet of publicly accessible beach along the Lake 412,000 tons of material were shipped or received, Superior shore. however since that time the harbor’s primary user,

Aerial view of Ontonagon Marina. MI DNR

ONTONAGON Michigan Coastal Community Working Waterfronts Case Study 11 CHALLENGES AND ACTIONS

In the last 15 years Ontonagon has faced a number of As Ontonagon transitions to a more balanced economic setbacks including the closure of a copper industrial-recreational-public waterfront, the village has mine, shipyard and paper mill. Over 180 jobs were lost taken an active role in acquiring the land along the when Smurfit-Stone Corporation closed their paper river. Waterfront access is provided by an easement to plant in 2011. In addition to impacting the region’s pier, parks along the river and road ends that abut Lake economy and employment rate, the loss of the shipyard Superior beach, for example. Among the objectives in and paper mill left vacant structures and land along Ontonagon’s Consolidated Recreation Plan’s 5-year a significant portion of the village’s Lake Superior action plan include improvements to east and west pier waterfront. and beach. Funding sources for these projects include DEQ Waterways Grants, DNR Trust Fund, among other The village recently adopted a hybrid zoning ordinance sources. Access to Lake Superior from road end. Elizabeth Durfee that fosters mixed use development along the waterfront, connection to the public waterfront and to The village’s future waterfront plans include increasing open space, preservation of viewsheds and walkability. accessibility to the lighthouse and developing a water The community has taken significant steps with regard trail on the river. The lighthouse can is currently only to re-envisioning and redeveloping the former paper accessible by crossing private property. Because of mill property. The village is in the process of subdividing this, access is limited to visitors who join a guided and cleaning up portions of the property that were tour run by the historical museum. One potential contaminated by former industrial use. Redevelopment option to increase public accessibility to this historical of the site will occur in phases. The first redevelopment resource is to transport visitors across the river from goal for this area is to develop the lakefront with downtown to the lighthouse by boat. The Ontonagon residential property. The village intends to maintain the River is the longest river in the Upper Peninsula and Smurfit-Store Co. paperfeet plant. Google Maps 2000 ability to use industry along the lakeshore. The actual provides ample recreational opportunities. The village meters 800 mill site will likely be redeveloped to support a wood has identified the opportunity to develop a water trail 2011 product industry such as a wood pellet producer. With along the river and Lake Superior shore and aims to access to rail, highways and a deep water port on collaborate with the Forest Service to identify put in and the Ontonagon River, the site is a prime location for take out points, including one on the Island. shipping and receiving commodities

Former Smurfit-Store Co. paper plant property. Bing Maps

2012 ONTONAGON Michigan Coastal Community Working Waterfronts Case Study 12 ZONING ORDINANCE

ZONING DISTRICT INTENT OF DISTRICT PERMITTED USE SPECIAL USE Waterfront Mixed Use Intent is to maintain a connection with the Rental, sales and service of non-motorized Boat works, marina/boat launch, parks/ public waterfront, link downtown and village recreational equipment such as canoes and playground, campgrounds, boat motor neighborhoods and provide uniform uses on both kayaks, roadside parks and all other parks, repair, Marina sales and service, sides of the waterfront boathouses and hoists including short-term outdoor storage Form Based District Purpose is to provide expansion of mixed-use in Rental, sales and service of non-motorized Boat works, Ccampgrounds, boat Downtown 2 a transitional area between residential areas, the recreational equipment such as canoes and motor repair, marina sales and service, highway corridor and downtown kayaks, roadside parks and all other parks including short-term outdoor storage Form Based District Designed to foster infill redevelopment in a Rental, sales and service of non-motorized Boat works, boat motor repair Downtown 3 sustainable mixed-use pattern as part of a vibrant, recreational equipment such as canoes and diverse urban area in the core of the village, kayaks, roadside parks and all other parks intended to support physical access and a sense of connection to water resources

General Industrial Includes industrial service, manufacturing, bulk Boat motor repair, rental, sales and service of Water and sewage treatment facility commodities and marine uses which engage in non-motorized recreational equipment such as intense scale or volume of activity and may store canoes and kayaks, marina sales and service, materials or vehicles including short-term outdoor storage, boat manufacturing establishment, roadside parks and all other parks, boathouses and hoists Residential-1 Intent is to provide for single-family residential Roadside parks and all other parks, boathouses Marina/boat launch, parks/playground, development and open space preservation and hoists campgrounds, rental, sales and service development in areas that transition to open and of non-motorized recreational equipment wooded areas in the neighboring township such as canoes and kayaks Residential-2 Intent is to provide for single-family residential Roadside parks and all other parks, boathouses Marina/boat launch development in transition areas between dense and hoists urban neighborhoods and the outlying rural residential areas

Gateway Corridor Intent is to serve as a gateway into downtown Boat motor repair, rental, sales and service of Parks/playground, campgrounds, marina with a variety of mixed-use activities and clustered non-motorized recreational equipment such as sales and service, including short-term commercial activity at important community canoes and kayaks, roadside parks and all other outdoor storage, water and sewage intersections parks treatment facility

TABLE 1. INTENT, PERMITTED USES AND SPECIAL USES OF ZONING DISTRICTS THAT ACCOMMODATE WATER DEPENDENT USES AND/OR PUBLIC ACCESS.

ONTONAGON Michigan Coastal Community Working Waterfronts Case Study 13 ZONING Village of Ontonagon Zoning Map

Ontonagon have seven zoning districts including three form-based code A MENDMENT DA TE: ORD. NO.: FROM: TO: districts and a waterfront mixed use district. Five districts, including the form-based district downtown 3, form-based district gateway corridor, residential -1 and -2 districts and the waterfront mixed use district, abut Lake Michigan and/or the Ontonagon River. All seven districts fall within a 1000-foot buffer of these bodies of water. Figure 4 displays zoning within Lake Superior Slachta the 1000-foot buffer of Lake Superior and the Ontonagon River. Lake Shore

el te ts n The village’s waterfront mixed use district is designed to support a li F

connection between the public waterfront, downtown and surrounding Paul Bunyan

Cedar

Lake Shore Oak neighborhoods. This area is currently characterized by both water related Poplar Walnut

Maple

Tamarack Airport and non-water related commercial and industrial uses, as well as vacant Prehnite Walnut ³ Cane Gorman Scovia

Epidote Hemlock buildings and land. The form-based district downtown 3 is also designed Houghton Quartz Lake Conglomerate Trap Chippewa Spar Pine

Michigan R-2 7th

Ontonagon Conglomerate to promote a connection and to support physical access to water R-1

Maple

River Michigan resources. All zoning districts permit certain water related uses - from Pennsylvania Quartz

Island Brass Copper

6th

Steel Minnesota h River c a e

3rd 4th B 5th

marina sales and services, boat rentals and boat houses, to marinas and 2nd le I Tin bb Wisconsin Greenbriar Pe R - Iron 2 nago Birch Warren nto n O B A boat launches - by right or special use permit (Table 1). S Lead Parker Firesteel

Zinc James Mill Gold

Superior Silver M 38

Tamarack Watt Alsace 7th

Mercury

Mercury

Steel

Heard Diamond Granite R-2 4th Old Norwich M 64

Mors Mulock James K Paul Payne Greenland I

Industry Park 2nd Sandstone Zinc Sandstone

4th 3rd Slate

Steel Chalk

Ontonagon Greenland Johnson Giesau

Rockland

R-1 R-1

Legend Cherry ontonagon_plss_sections Proposed Future Zoning Railroad Zoning This is to certify that this is the Offical Zoning Map Village Boundary I referred to in Section 1.2.13 of the Zoning Ordiance of the Village of Ontonage, Michigan. Form Based District Gateway Corridor R-1 ³ Adopted ______, 2012

Form Based District Downtown 2 R-2 River ______Form Based District Downtown 3 W-MU 0 5901,180 Feet Village President Roads ______Village Clerk Source: UPEA GIS, MCGI Base layers. Prepared byRiver MAB. October 2009. Revised MAB 11.15.2011

FIGURE 2. VILLAGE OF ONTONAGON 2012 ZONING DISTRICTS (SOURCE: VILLAGE OF ONTONAGON).

ONTONAGON Michigan Coastal Community Working Waterfronts Case Study 14 ZONING ADJACENT TO WATERFRONT

Mixed use districts including the Waterfront Mixed Use, Form Based District Gateway Corridor and Form Based District Downtown 3 account for approximately 81 percent of frontage along Lake Superior and the Ontonagon River. Residential land uses account for the remaining frontage along these bodies of water (Figure 3).

2012 ONTONAGON ZONING DISTRICTS Residential-1 Residential-2 Form Based Downtown 2 Form Based Downtown 3 General Industrial Waterfront Mixed Use Form Based District Gateway Corridor

0.5 mile N

FIGURE 3. MAP OF ZONING ADJACENT TO WATERFRONT (RIGHT) AND FRONTAGE BY ZONING CATEGORY (BELOW). Residential-1 Residential-2 Mixed Use Waterfront Form Based District Gateway Form Based Downtown 3 Residential-1 Residential-2 Mixed Use Waterfront Form Based District Gateway Corridor Form Based District Downtown 3 7.640064 miles feet total frontage length Residential 20% 20% Mixed Use Mixed Use 81%

ONTONAGON Michigan Coastal Community Working Waterfronts Case Study 15 ZONING WITHIN 1000 FEET OF WATERFRONT

Land use within a 1000-foot buffer of Lake Superior and the Ontonagon River consists of approximately 58 percent mixed use, 34 percent residential and 8 percent industrial uses (Figure 4).

2012 ONTONAGON ZONING DISTRICTS Residential-1 Residential-2 Form Based Downtown 2 Form Based Downtown 3 General Industrial Waterfront Mixed Use Form Based District Gateway Corridor

0.5 mile N

FIGURE 4. MAP OF ZONING AND LOCATION OF WATER-DEPENDENT USES WITHIN A 1000- FOOT BUFFER OF WATER BODIES (RIGHT) AND WATERFRONT LAND AREA BY ZONING CATEGORY (BELOW). - Residential-2 Residential-1 General Industrial Mixed Use Waterfront Form Based District Downtown 2 Form Based District Downtown 3 Form Based District Gateway Corridor Residential-2 Residential-1 General Industrial Mixed Use Waterfront Form Based Downtown 2 Form Based Downtown 3 Form Based District Gate way 723 acres in 7231000-ft acres buffer

Residential 34% 34% Industrial 8% 8% Mixed use 59% Mixed Use 59%

ONTONAGON Michigan Coastal Community Working Waterfronts Case Study 16 INFRASTRUCTURE AND ACCESS

Figure 5 displays aerial imagery with waterfront infrastructure within a 1000-foot boundary of Lake Superior and the Ontonagon River that have identified water related uses and highlights parks and beaches that provide public access.

Ontonagon Lighthouse INFRASTRUCTURE AND ACCESS Island Park Municipal Marina & Park Building Footprint - Water Dependent Use Park Boat Ramp Docks/Marina Beach

0.25 mile N

FIGURE 5. WATER DEPENDENT AND ENHANCED USES, DOCKS, WATERFRONT PARKS ALONG THE WATERFRONT AND WITHIN 1000 FEET OF WATER BODIES.

ONTONAGON Michigan Coastal Community Working Waterfronts Case Study 17 WORKING WATERFRONT SWOT ANALYSIS

There are a number of factors that influence a community’s ability to maintain strategic planning tool with four elements: strengths, weaknesses, opportunities a robust working waterfront. The strengths, weaknesses, opportunities and and threats. The analysis identifies the positive, negative, internal and external threats (SWOT) analysis below (Table 2) provides examples of the challenges factors that influence an individual, business, organization or place’s ability to and opportunities associated with maintaining Ontonagon’s waterfront as a achieve an objective. For example, internal factors may include human, physical place that provides public access and supports and is well integrated within or financial resources and past activities or programs. External factors may the community from a planning and physical perspective. A SWAT analysis is a include future trends, the economy, or the physical environment.

STRENGTHS WEAKNESSES n New hybrid zoning n Harbor of Refuge n Little beach access in town n Aging population n Tourism has remained strong n Recreational fishing, canoeing n Poor signage directing visitors to n County still recovering from n Marina serves region, has and kayaking opportunities beach closure of mines amenities including fish cleaning n Accessible pier n Lack of bike paths n River is underutilized n Deep water port n Rose Island (the Island) n Community lost major employer n Marina and downtown on opposite n Multiple docks along river n Historic lighthouse, historical n Contamination associated with side of river n Lake Superior waterfront and museum former land uses n Land on east side of river not n beaches Water, road, rail connection n Lack of visual connection between currently accessible to the public n History of region, Location near n Port and role in transportation of the downtown and Lake Superior except for several areas on the Porcupine Mountains coal for power plant n Vacant buildings and land along Island waterfront

OPPORTUNITIES THREATS n Downtown/bridge stripe future n Re-envision character of n Depressed economy north of downtown for industrial business development waterfront, riverfront boardwalk n High unemployment or manufacturing purposes n n Redevelopment of the former Role as transportation hub, n Harbor requires regular dredging include remoteness and distance paper mill property water-road-rail access from markets, transportation n Community needs to attract new n Increase recreational n Develop new transient slip boat issues, limited size for the labor businesses opportunities and appeal basin on the east side of the river force and the unique size and n Challenges to reusing former n Development of a water trail and with walking access to shopping configurations of the buildings lakeshore 20 acre industrial site other rec opportunities and entertainment on the river and Lake Superior n Create a better connection n Lakeshore District town square between the downtown and park/gathering space Lake Superior waterfront TABLE 2. STRENGTHS, WEAKNESSES, OPPORTUNITIES AND THREATS RELATED TO MAINTAINING ONTONAGON’S WORKING WATERFRONT.

ONTONAGON Michigan Coastal Community Working Waterfronts Case Study 18 TOOLS, STRATEGIES AND BEST PRACTICE FOR MAINTAINING WORKING WATERFRONTS

CREATE A HYBRID ZONING ORDINANCE Promote waterfront revitalization by adopting a hybrid zoning ordinance that fosters mixed use development along the waterfront, connection to the public waterfront and to open space, preservation of waterfront views, and walkability. Rezoning and subdividing former industrial property for mixed can prepare a parcel for redevelopment that meets evolving community needs.

Walkway along the Ontonagon River. Elizabeth Durfee

Docks on the Ontonagon River. Elizabeth Durfee

Island Shorline Park. Elizabeth Durfee

ONTONAGON Michigan Coastal Community Working Waterfronts Case Study 19 GUIDING PRINCIPLES MANAGING WATERFRONTS AND WATER-DEPENDENT USES AS AN IMPORTANT ELEMENT OF A SUSTAINABLE COASTAL COMMUNITY

PROCESS-BASED n Engage diverse stakeholders and local, regional and state partners in waterfront planning. n Integrate waterfront planning with local and regional master and comprehensive planning. n Incorporate adaptation planning into waterfront planning. n Articulate the community’s vision for future of the waterfront.

OUTCOME-BASED n Protect the natural resources that working waterfronts uses are intrinsically tied to and dependent upon. n Maximize the public benefit of working waterfronts through visual and physical access and amenities. n Permit compatible mixed uses along the waterfront. n Emphasize the economic and cultural value of local water-dependent uses. n Preserve visual and physical access to water resources. n Balance waterfront land uses to meet the needs of residents, visitors, water-dependent uses and ecological communities. n Increase resiliency by promoting diverse and flexible water-dependent uses.

VILLAGE OF ONTONAGON

Permit compatible mixed uses along the waterfront.

Balance waterfront land uses to meet the needs of residents, visitors and water-dependent uses.

How does your community stand up?

ONTONAGON Michigan Coastal Community Working Waterfronts Case Study 20 REFERENCES AND RESOURCES

Digital Coast NOAA Coastal Services Center (2010) Ontonagon U.S. Census Bureau (2000). Profile of General Population and U.S. Census Bureau (2010). Selected Economic Characteristics County, Michigan Snapshot. http://www.csc.noaa.gov/snap- Housing Characteristics, Village of Ontonagon. Retrieved 2006-2010 American Community Survey 5-year Estimates, shots/#ocean%2626131 July 2012 from http://factfinder2.census.gov/faces/nav/jsf/ Ontonagon County. Retrieved from http://factfinder2.census. pages/searchresults.xhtml?refresh=t gov/faces/nav/jsf/pages/searchresults.xhtml?refresh=t MI GenWeb Ontonagon County (2006) http://hometownchronic- les.com/mi/ontonagon/cmty-ontonagon_vlg.htm U.S. Census Bureau (2010). Educational Attainment 2006-2010 U.S. Census Bureau (2010). Selected Economic Characteristics American Community Survey 5-year Estimates, Village of 2006-2010 American Community Survey 5-year Estimates, Michigan Department of Natural Resources (2012) Mining in Ontonagon. Retrieved from http://factfinder2.census.gov/ Village of Ontonagon. Retrieved from http://factfinder2.cen- Michigan. Retireved from http://www.hal.state.mi.us/mhc/ faces/nav/jsf/pages/searchresults.xhtml?refresh=t sus.gov/faces/nav/jsf/pages/searchresults.xhtml?refresh=t museum/explore/museums/hismus/prehist/mining/copper. html U.S. Census Bureau (2010). Educational Attainment 2006-2010 US Army Corps of Engineers (2012). Ontonagon Harbor, MI Fact American Community Survey 5-year Estimates, Ontonagon Sheet. Retrieved from http://www.lre.usace.army.mil/_kd/ Ontonagon County Historical Society (2009) The Ontonagon County. Retrieved from http://factfinder2.census.gov/faces/ go.cfm?destination=Page&pge_id=2218&dialog=0 Lighthouse. Retrieved from http://www.ontonagonmuseum. nav/jsf/pages/searchresults.xhtml?refresh=t org/lighthouse1.htm Village of Ontonagon (2013) About Ontonagon. Retrieved from U.S. Census Bureau (2010). Profile of General Population and http://villageofontonagon.org/about-ontonagon/. Personal Communication Joe Erikson, City of Manistee Planning Housing Characteristics, Village of Ontonagon. Retrieved and Zoning Department (September 20, 2012) July 2012 from http://factfinder2.census.gov/faces/nav/jsf/ Western Upper Peninsula Planning and Development Region pages/searchresults.xhtml?refresh=t (2012) Village of Ontonagon Township of Ontonagon Con- U.P. Engineers & Architects, Inc. (2007) Ontonagon Village solidated Recreation Plan 2012-2017. Retrieved from http:// Master Plan. Retrieved from http://upea.com/filesfordown- U.S. Census Bureau (2010). Profile of General Population and www.wuppdr.com/pdf/OntVTrec12-17_reduced.pdf loading/draft.pdf Housing Characteristics, Ontonagon County. Retrieved July 2012 from http://factfinder2.census.gov/faces/nav/jsf/pages/ U.P. Engineers & Architects, Inc. (2012) Village of Ontonagon searchresults.xhtml?refresh=t Hybrid Zoning Ordinance. Retrieved from http://villageofon- tonagon.org/hybrid-zoning-ordinance-2/ U.S. Census Bureau (2010). Profile of General Population and Housing Characteristics, Ontonagon County. Retrieved July U.P. Engineers & Architects, Inc. (2012). Village of Ontonagon 2012 from http://factfinder2.census.gov/faces/nav/jsf/pages/ Zoning Map. Retrieved from http://www.upea.com/customer- searchresults.xhtml?refresh=t access/Ontonagon/FINAL_ZONING_MAP.pdf

ONTONAGON Michigan Coastal Community Working Waterfronts Case Study 21